Renewable and Sustainable Energy Reviews 24 (2013) 21–31

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Renewable and Sustainable Energy Reviews

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Programme management of world bank financed small hydropower

development in Zhejiang Province in China
Xiaojian Chen a,b, Zhenyu Wang a,n, Sanfeng He c, Fuqiang Li a
a
College of Civil Engineering and Architecture, Zhejiang University, Hangzhou 310058, People's Republic of China
b
Zhejiang Provincial Hydropower Management Center, Hangzhou 310009, People's Republic of China
c
International Institute of Education, Zhejiang Water Conservancy and Hydropower College, Hangzhou 310018, People's Republic of China

art ic l e i nf o a b s t r a c t

Article history: The Government of China (GOC), in conjunction with the World Bank (WB) and the Global Environment
Received 15 May 2012 Facility (GEF), has recently developed the China Renewable Energy Scale-up Programme (CRESP).
Received in revised form The latter involves an analysis of the current state of renewable energy resources in China as well as
4 March 2013
the implementation of a renewable energy scale-up development based on pilot work. Using the
Accepted 15 March 2013
Zhejiang Small Hydropower Programme financed by the WB as a real-world application case study, a
Available online 9 April 2013
comparison is made between the project management policies espoused in China and those of the WB,
Keywords: with management constraints being examined in detail. Owing to the need for certain modifications to
Small hydropower current management techniques, a framework model of programme management is put forward, with
Programme management
the project management office (PMO) at its core, and staged implementation and multi-level manage-
World Bank financing
ment constituting its principal methods. In addition, this model of programme management meets the
Renewable energy development policy
requirements concerning the policies and procedures stipulated by the WB, with other benefits including
a reduction in terms of cost as well as in the duration of the construction of related subprojects. This is
especially relevant if we take into consideration the sheer number of small hydropower plants and the
diversity of their locations throughout China. This model should therefore be considered for promoting
the scale-up development of small hydropower and other renewable energies in China, and its
application may have a wider significance.
& 2013 Elsevier Ltd. All rights reserved.

Contents

1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
2. Differences in management policies between WB-financed projects and domestic hydropower projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
3. Challenges involved in the scale-up of small hydropower development in China using WB loans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
4. Programme management strategy for small hydropower scale-up development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
4.1. The necessity for an effective programme management strategy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
4.2. Three-dimensional integrated programme management model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
4.3. Programme management office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
5. Case study involving the Zhejiang small hydropower programme . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
5.1. Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
5.2. Management framework . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
5.3. Possible constraints and risks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
5.4. Realisation of the Zhejiang small hydropower programme management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
5.4.1. Programme integration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
5.4.2. Programme appraisal. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
5.4.3. Procurement management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
5.4.4. Financial management. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
5.4.5. Environment and resettlement management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28

n
Correspondence to: College of Civil Engineering and Architecture, Zhejiang University, Yuhangtang Road 866#, Hangzhou 310058, People’s Republic of China.
Tel.: þ 86 1377 7466 589; fax: þ 86 571 8795 2261.
E-mail address: wzyu@zju.edu.cn (Z. Wang).

1364-0321/$ - see front matter & 2013 Elsevier Ltd. All rights reserved.
http://dx.doi.org/10.1016/j.rser.2013.03.045
22 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31

5.4.6. Dam safety management. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28

5.5. Implementation effect of Zhejiang small hydropower programme . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
5.6. Analysis of the advantages of programme management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
6. Discussion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
6.1. Programme alteration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
6.2. Financial guarantee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
6.3. The PMO as intermediary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
6.4. Programme information management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
7. Conclusions and prospects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31

1. Introduction
Since its first loan, which was granted in 1981 to support the
development of Chinese universities [1], by June 30, 2011, the World
Bank's cumulative lending to China had reached approximately US
$49.15 billion, covering a total of 337 development projects [2], and
making China's portfolio one of the largest in the Bank. Indeed, the
Bank's loans to China have played a significant role both in the relief
of poverty and in the promotion of sustainable development. As
environmental policy now plays an important role in the agenda of
China's new government, World Bank (WB) funds and international
cooperation are of equal importance for reforming energy policies
and enforcing environmental protection, which are in fact two areas
of particular global concern [3–7]. In order to alleviate energy
shortages while decreasing greenhouse gas emissions, China has
recently initiated energy policy reforms to improve energy effi-
ciency, decrease energy consumption, and to promote renewable
energy generation [8–13].
Hydropower is an important source of renewable energy towards
which the most recent technological developments have been direc-
ted, thus creating great potential for large-scale commercial exploita-
tion. By 2010, the gross installed hydropower capacity of China had
reached 200 GW, ranking first in the world and consuming 24% of
the country's total power-generating capacity [14]. Over a century of
hydropower generation, the cumulative energy produced has amoun-
ted to 7.299 trillion kWh, which is equivalent to an energy output of
2.7 billion tons of standard coal, resulting in a reduction in carbon
dioxide emissions by 7 billion tons [14]. There are more than 45,000
small hydropower plants with a total installed capacity of over 59 GW,
and the annual energy produced amounting to 200 billion kWh [15].
Small hydropower is the major power source for a quarter of the total
population in one-third of all counties, covering almost half of the land
in the country [16]. After decades of development, small hydropower
has not only increased power reserves, responding to power emer-
gencies and improving energy infrastructure, but it also plays a
significant role in environmental protection [13].
Scale-up development is the best method for small hydropower
to achieve social and economic recognition while keeping develop-
ment and operation costs low. The important issue the Chinese
government is facing is how to set up an optimal development and
incentive policy. To date, 34 technological standards concerning
small hydropower development have been issued to improve their
technical level, regulate developmental procedures and mitigate
negative impact on environment and resettlement. During the
implementation process of hydropower electricity generating pro-
jects in rural areas and the modernisation of traditional power trees
and straw fuel by small hydropower, the government has provided
financial subsidies to the industry in the form of favourable tax
policies and price fixation. In addition, the Renewable Energy Law of
the People's Republic of China promulgated in 2006 provides legal
support for the implementation and reform of the renewable energy
policy. Currently, the small hydropower resources utilised only
account for 34% of the total potential. In 2010, China embarked on
a plan to ensure even greater potential for energy generation
involving the refurbishment of 9612 small hydropower plants in
rural areas, with a total capacity of 9,834.9 MW. On the other hand,
the rapid increase of development costs, financial shortages, and
inadequate efforts to protect the environment and manage resettle-
ment have also been exposed during the development process of
small hydropower plants. These particular challenges should act as
an incentive for China to strengthen international cooperation,
reform management methods, and open new financing channels.
In view of the above, while the Government of China (GOC) was
developing the Renewable Energy Scale-up Programme (CRESP) in
cooperation with the WB and the Global Environment Facility
(GEF), the small hydropower development project in Zhejiang was
included in Phase I, aiming for the gradual implementation of a
renewable energy scale-up development as well as the provision
of cost-effective and commercial renewable energy electricity to
the electric power market [7]. CRESP is a 10–12 year endeavour to
be implemented in three phases. In Phase I, a WB loan of US
$173.33 million was sought for pilot scale-up renewable energy
investments, and a GEF grant of US$40.22 million was approved by
the GEF Council in order to finance CRESP institutional develop-
ment and capacity building.
The successful implementation of WB-supported projects
depends on a number of factors [17]. Although there is consider-
able social demand and sound policy support for the scale-up
development of small hydropower in China, there are many
problems inherent in the efficient use of WB loans for its devel-
opment. These problems include the following: (i) due to variable
plant conditions and locations, both fixed and simple models of
development are scarcely applicable to small hydropower pro-
jects; (ii) most small hydropower resources are in the mountains
in economically underdeveloped areas where there is an obvious
lack of start-up capital; (iii) a deficit of qualified technicians in
these rural areas leads to poor management and poor capacity for
identifying and controlling risks during project implementation;
and (iv) previous WB-financed projects in China have mostly been
single large-scale projects and the experience acquired from them
is not necessarily applicable to managing a group of disparate
small hydropower projects, each with its unique set of character-
istics. Furthermore, significant differences between the manage-
ment policies of WB-supported projects and small hydropower
development policies in China cause even more complications
connected with the acquisition and utilisation of WB funds.
A thorough analysis of the challenges and constraints facing the
scale-up development of small hydropower is conducted in this
paper, based on the comparison between Chinese project manage-
ment policies and those of the WB. A framework model of pro-
gramme management is suggested, with a project management office
(PMO) at its core and staged implementation and multi-level man-
agement constituting the methods used. The principles, advantages,
and disadvantages of WB-financed Zhejiang Small Hydropower
 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31
programme management are also explained. We should also note
that the model of programme management and methods put forward
in this paper meet the requirements established by the WB for the
projects which it finances. In addition, if the large number of small
hydropower plants and their diverse locations are taken into account,
this model of programme management would also contribute to
reducing the duration of subproject construction as well as lowering
the costs of implementation.
2. Differences in management policies between WB-financed
projects and domestic hydropower projects
Ninety per cent of WB loans lent to members are for invest-
ment purposes, and as such, the management of investment
projects represents a vital component in the Bank's lending work.
There are, however, significant differences between the manage-
ment of WB-financed projects and hydropower development
policies in China, mainly concerning project approval, procure-
ment and the management of funds, and environment/resettle-
ment management. Specifically, these differences are as follows.
(1) The approval of feasibility studies and preliminary design reports
for domestic hydropower projects, including the required doc-
umentation (e.g. written approval from the related governmental
department), differ from the appraisal of WB-financed projects
only in terms of consultancy and review entities. The manage-
ment of WB-financed projects should adhere to the technical
procedures mentioned above (including project appraisal and
approval) to ensure that they meet the Bank's appraisal standards
as well as the domestic governmental approval process.
(2) The tendering and bidding policy for hydropower projects in
China differs from the requirements laid down in the WB's
Procurement Guidelines [18] in terms of practices relating to
procurement methods, pre-qualification, bidding time, con-
tract award, and bid evaluation. In the management of WB-
supported projects, attention should be paid to fund procure-
ment and management that meet the Bank's procedural
requirements in order to avoid unqualified procurement,
which would be ineligible for reimbursement.
(3) The WB's policies and procedures on environment and reset-
tlement are more concerned with public involvement and
consultation. More importance should therefore be attached to
these issues in order to satisfy WB requirements.
(4) The financial management of WB-supported projects is mainly
based on relevant domestic policies. Project auditing is con-
ducted by the pertinent auditing department in accordance with
domestic regulations. However, WB loans are disbursed to
domestic owners who have already paid investment expenses;
the WB's project financial statements are specifically intended to
be different in form from domestic ones.
(5) The WB pays great attention to dam safety in new projects
owing to the potentially serious consequences resulting from
abnormal operation or accident. Detailed dam safety manage-
ment requirements are specified in Operational Policies (OP)
4.37 [19] and Bank Procedures (BP) 4.37 [20], which differ from
domestic rules and norms on dam safety management in
terms of expert consultancy and review entity.
3. Challenges involved in the scale-up of small hydropower
development in China using WB loans
Traditionally, small hydropower projects in China have been
funded by local government or enterprises familiar with the
23
domestic policies relating to hydropower development. Although
independently owned capital and management resources for these
projects are relatively limited, investors are still able to accomplish
their objectives at a low management cost. Not only does WB
financing provide new opportunities for development and promo-
tion, but it represents a series of challenges, which are detailed
below, concerning traditional small hydropower development and
management.
(1) The fact that the present small hydropower administration
and project owners are not acquainted with the management
policies of WB-financed projects could result in an irregular
use of the loan.
(2) The utilisation of a WB loan increases the work-load and adds
complications to project development. The owners must not
only complete the domestic approval procedures for hydro-
power plant construction, but must also go through the Bank's
appraisal procedures before the Loan Agreement and Project
Agreement are signed.
(3) Due to the small size of individual hydropower projects and
poor management, owners are unable to go through the
domestic approval and WB appraisal procedures on their
own, and, as a consequence, there are high internal risks
involving the procurement and financial management of these
projects.
(4) Compared with other projects financed by the WB, where
individual small hydropower projects are concerned there is
little opportunity to obtain governmental approval for an
application for a WB loan due to the small size of the funds
required. In addition, a small hydropower project owner
would incur high incremental costs for project implementa-
tion because the life cycle of a WB-financed project is usually
very long. An application for financial aid from the WB there-
fore runs contrary to the financial interests of a small hydro-
power project owner.
(5) During the implementation of WB-financed projects, the Bank
usually sends out consultants on environmental, resettlement,
and dam safety matters so as to follow up and supervise the
implementation of a project. However, when small hydro-
power projects are undertaken in groups, it is impossible for
the Bank's consultants to supervise so many projects, which
are not only small in size, but are also located in many
different places.
(6) Fund management is an important part of the overall integrity
of WB-financed projects. On each small hydropower project,
detailed procurement plans are supposed to be prepared and
submitted to the Bank for approval. Due to the large number of
these projects, proposal evaluation would realistically be
inefficient.
4. Programme management strategy for small hydropower
scale-up development
4.1. The necessity for an effective programme management strategy
The scale-up development of small hydropower would usually
involve many small inter-related hydropower projects (i.e. sub-
projects) with a number of characteristics in common. For
instance, they might have common construction procedures and
administration, as well as needing to go through similar applica-
tion and management procedures for WB financing. Although
small hydropower subprojects have their respective goals con-
cerning economic and financial returns, their common strategic
objectives include energy efficiency, the reduction of emissions,
24 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31
and the promotion of renewable energy source development.
Indeed, if subprojects share social or institutional resources,
including, but not limited to, policy consultation, technical gui-
dance, intermediary service, bidding and procurement, supervi-
sion and risk control, then, as a result, the cost of development
would be significantly reduced and the overall strategic goal of
such programmes would be realised, as the WB and GOC attest.
Despite these common characteristics, conditions unique to
clusters of small hydropower subprojects require the adoption of
tailor-made measures so as to advance small hydropower and to
solve the diverse problems facing individual subprojects. Accord-
ing to the traditional model of project management, the opposing
terms “scale-up” and “tailor-made” are difficult to implement
simultaneously for small hydropower development [21,22]. With
the growth of programme management, the strategy of a “pro-
gramme” could be applied and new breakthroughs for the scale-
up of small hydropower development promoted.
Researchers [23–27] have proposed the following definition of
a programme: a portfolio of projects that is managed in a
coordinated manner to provide benefits that would not be possible
had the projects been managed independently. PMI [28] defines
programme management as the centralised coordinated manage-
ment of a group of projects so as to achieve overall strategic
objectives. Ma et al. [29] divide programmes into two categories
according to the different relations between projects, that is,
“competing programmes” and “coordinating programmes”. Gray
[30] divides programmes into three types according to their
degree of combination: “loose”, “strong”, and “open”. Based on
the different targets for these programmes, Wang et al. [31]
classify them as: “constraint-oriented”, “customer-oriented”, “pro-
duct-oriented”, and “strategy-oriented”. The concept of pro-
gramme management has been of considerable value in the
fields of construction [32,33] and spatial development [34].
Based on the foregoing analysis and discussion, it is reasonable
to say that small hydropower projects in a scale-up development
have the features required of a programme. It is therefore
necessary to adopt a strategy for programme management in
order to ensure the successful acquisition and utilisation of WB
loans, to lower administrative costs, and to decrease risks incurred
in their developmental process.
4.2. Three-dimensional integrated programme management model
Project management is oriented toward the objectives of an
individual project. It focuses specifically on the management of
capital, progress, and quality. The project management team
participates in all areas of management during a particular project
cycle [35]. Programme management, by contrast, is oriented
towards a variety of strategic goals involving multiple projects
[30,36] and focuses on integral planning, control, and coordina-
tion. Typically, the programme management team does not play a
direct role in the day-to-day administration of individual
subprojects.
Integrated management is the key to programme management.
As is shown in Fig. 1, integrated programme management incor-
porates various factors involved in the programme for the follow-
ing three dimensions: integrated administrative organisation,
integrated management factors, and integrated processes [37].
The connexion of different programme stages can be strengthened
by process integration, which is achieved through good commu-
nication. The integration of management factors provides a gen-
eral project roadmap, and goals and factors are considered in order
to optimise efficiency. The integration of the administrative
organisation is intended to strengthen the communication and
cooperation among project stakeholders, to tap the potential of
Integration of
administrative organization
Integration of
management factors
scope management
time management
cost management
Integration of
quality control
processes
human resources management
communication
risk control
procurement management
Fig. 1. Integrated programme management model [37].
the subproject organisational system fully, and to improve overall
programme management.
4.3. Programme management office
Programme management activities are conducted by a Pro-
gramme Management Office (PMO). Containing as few team
members as possible, a PMO is at the head of the strategic division,
overseeing all management activities, strategic organisational
objectives, and high-level management [36,38]. A PMO performs
the following functions at various stages of programme manage-
ment [39]. (i) Programme identification: a PMO sets up pro-
gramme objectives in accordance with an organisational strategy,
defines its own place in the operational and development process,
and provides programme boundaries. (ii) Programme planning:
a PMO reifies the objective defined at the previous stage by
forming the programme's administration, designing an implemen-
tation scheme, assigning responsibilities among staff, and allocat-
ing resources. (iii) Programme implementation: the programme
manager is responsible for supervising and controlling the pro-
gress of each subproject, coordinating subprojects, evaluating
risks, and handling disputes to ensure that the programme's
strategic objectives are reached in a timely fashion. (iv) During
the final stage of the programme, the PMO assesses the fulfilment
of strategic targets based upon objective completion.
5. Case study involving the Zhejiang small hydropower
programme
5.1. Background
Zhejiang Province, located in the southeast of China, is cur-
rently enjoying rapid social and economic development. For the
past five years, the GDP has increased at an average rate of 11.8%.
Zhejiang is rich in hydropower resources with an estimated
exploitable hydropower capacity of 8620 MW, of which 4620 MW
can be produced by small hydropower. Over 3175 small hydropower
plants with an individual capacity of less than 50 MW had been
constructed across the province by 2011, producing a total capacity
of 3699 MW; the exploitation rate of small hydropower resources
has reached 80% within the province. Although Zhejiang ranks
sixteenth among all the provinces and municipalities in the country
in terms of small hydropower resources, their developed capacity
ranks sixth and its exploitation rate ranks fourth. Installed small
 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31 25

hydropower capacity comprises 6.5% of the total installed genera-
tion capacity of the province. As of June 2011, Zhejiang had obtained
WB financing amounting to US$2739.24 million, accounting for
5.57% of the total loans to China by the Bank. Due to the outstanding
efficiency of hydropower management and production, positive
environmental impact assessments, and favourable real estate
development policies, the WB and GOC consider Zhejiang a pilot
province for the CRESP initiative.
5.3. Possible constraints and risks
The constraints and risks of the Zhejiang Small Hydropower
Programme, arising in part from differing management policies
between WB-financed projects and domestic hydropower regula-
tions, are shown in Table 1.
5.4. Realisation of the Zhejiang small hydropower programme
management

5.2. Management framework 5.4.1. Programme integration

In July 2004, the Zhejiang Small Hydropower Programme was
listed as one of the candidates for WB financing, and a manage-
ment organisation was promptly set up (Fig. 2). A provincial PMO
was established for both programme and subprojects and respec-
tive PMOs were also established at county level. The provincial
PMO coordinated relevant departments, such as the Zhejiang
Provincial Development and Reform Commission, the Zhejiang
Provincial Department of Finance, the Zhejiang Provincial Depart-
ment of Water Resources and the Zhejiang Provincial Department
of Land Resources. It also managed the planning, finance, technol-
ogy, and construction of the programme. County PMOs were
responsible for coordinating and implementing subprojects under
their respective jurisdiction. Key activities such as programme
integration, fund procurement, environment and resettlement,
and dam safety were managed by the provincial PMO, which
remained the programme's core management office (see Fig. 2 for
the management framework). The Zhejiang Small Hydropower
management complied with the relevant regulations set forth by
the WB and the GOC, ensuring successful and efficient programme
implementation.
In 2005, 114 small hydropower plant operators submitted
documents required for domestic approval. Based on the sub-
mitted materials, the provincial PMO screened the subproject
candidates and selected 18 to participate in the Zhejiang Small
Hydropower Programme (see Table 2, Figs. 3–4 for details). The
PMO then prepared a final report, applying for WB financing after
an analysis and assessment of the economic, financial, social, and
environmental aspects of the subprojects had been conducted. The
PMO prepared and submitted framework documents (the Project
Implementation Plan as it was referred to by the Bank) in
accordance with the Bank's policies on the management of the
projects which it finances and with the relevant laws and regula-
tions established by the Chinese government. The funds from the
Bank were successfully received in December 2005 when the
Project and Loan Agreements were signed. All programme pre-
paration procedures were completed within 17 months, which
was much faster than the usual 24–36 month preparation period.
5.4.2. Programme appraisal
Unlike the usual projects financed by the WB, which are usually
evaluated in one stage, the appraisal of the Zhejiang Small

Fig. 2. Management framework for the Zhejiang Small Hydropower Programme.

Table 1
Constraints and risks of the Zhejiang Small Hydropower Programme.

Key activities of programme Programme constraints Programme risks

management

Programme management
organisation; programme
integration; programme
appraisal.
Procurement management
Environment management
Resettlement management
Dam safety management
Financial management
Selection of subprojects by GOC and WB; programme approval by GOC; Programme not constituted; programme approval not
programme appraisal by WB; negotiation and signing of Loan Agreement completed; programme appraisal not completed; not
and Project Agreement. eligible for WB financing.
Guideline for Procurement under IBRD Loans and IDA Credit (WB Issues relating to procurement
Procurement Guideline)
WB's environmental policies and national laws and rules on environment Environmental risks
WB's resettlement policies and national laws and rules on land and land Resettlement risks
requisition
WB's dam safety policies and national rules and regulations on dam Dam safety risk
safety management.
Financial covenants in Loan Agreement and Project Agreement, and Financial risks
related national financial regulations for WB-supported projects
26 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31

Table 2
Survey of the Zhejiang Small Hydropower Programme.

Original Capacity after Bank financing

Plant name Type Cost (US$10,000) Commission date Note
capacity (kW) construction (kW) (US$10,000)

S1 Reno. 2800 3500 93 77 Mar. 2006

S2 Reno. 640 1000 59 46 Apr. 2006
S3 Reno. 640 1260 114 73 Mar. 2007 Change of owner
S4 Reno. 800 1800 74 47 Aug. 2006
S5 Reno. 8000 10000 414 319 Dec. 2006
S6 New – 3200 362 136 Oct. 2007
S7 New – 1600 178 67 Oct. 2007
S8 Reno. 5130 6230 176 139 Jun. 2008
S9 Reno. 1000 1600 44 44 Jun. 2008
S10 Reno. 6400 7200 185 146 May 2007
S11 Reno. 400 2500 308 124 Dec. 2010
S12 Reno. 570 1200 208 130 Nov. 2010
S13 New – 5000 452 254 May 2008
S14 New – 2000 201 73 Feb. 2007
S15 New – 800 86 34 Mar. 2007
S16 New – 1000 105 59 Nov. 2010
S17 Reno. – – – 0 – withdrawn
S18 New – – – 0 – withdrawn
26380 49890 3060 1768

Note: In the table, “Reno.” stands for “Renovation”.

Fig. 3. Integration flowchart for the Zhejiang Small Hydropower Programme.

Hydropower Programme was divided into two parts (see Fig. 5).
Before the programme negotiations, the Bank approved the
management organisation and the programme framework, but
no specific assessment was made on individual subprojects. When
the negotiations had been completed and the implementation
stage had commenced, the appraisal of subprojects was conducted
by a provincial PMO, to which the task had been entrusted by the
Bank. The PMO organised experts to assess the subprojects in
batches in accordance with the procedures and standards specified
in the framework, covering Technical Due Diligence, Environmental
Impact Assessment (EIA), Resettlement Action Plan (RAP) and the
dam safety evaluation of each subproject. Only after the appraisal of a
subproject had been approved by the Bank could the loan proceeds
be utilised. The aforementioned model sped up programme appraisal
and costs were reduced in consequence.
5.4.3. Procurement management
The procurement of industrial goods and civil services was
made through International Competitive Bidding (ICB), National
 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31 27

Fig. 4. The location of the Zhejiang Small Hydropower Programme.

Fig. 5. Appraisal of the Zhejiang Small Hydropower Programme.

Competitive Bidding (NCB), and inquiries, which were subject
to prior review by the Bank. The procurement management
flowchart for the Zhejiang Small Hydropower Programme is
presented in Fig. 6. Procurement management on this programme
differed from usual practices on WB-financed projects in several
ways. Firstly, there were a number of subproject owners; with
some subprojects belonging to the state and others being privately
owned. Secondly, there were hundreds of small contracts. After
consulting with the Bank, a multi-level procurement style of
management was adopted for the programme.
5.4.4. Financial management
Financial guarantee, the management of loan proceeds and
auditing were identified as the crucial concomitants of the
financial management of the programme. To ensure the sound
allocation and repayment of WB loans, hierarchical financial
guarantees were required while applications for subproject finan-
cing by the WB were being submitted. That is, first of all financial
guarantees had to be obtained from the government bodies of the
counties where the subprojects were located, followed by the
government bodies at provincial level, and finally from central
28 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31

government at national level. Once the WB loans had been
obtained, the proceeds were on-lent from national to provincial
level, down to county level, and finally to the owners of the
subprojects. During the implementation of the programme, the
Provincial Department of Finance undertook responsibility for
withdrawing loan proceeds from the Special Account and reim-
bursing subproject owners, and the PMO was responsible for
examining and approving disbursement applications and other
financial activities. The management of loan proceeds allocated to
the programme is shown in Fig. 7. Auditing was conducted by the
Zhejiang Provincial Audit Office as authorised by the State Audit-
ing Administration. The provincial PMO was responsible for
submitting audited annual financial reports to the WB Beijing
Office by June 30 each year. The reports consisted of two parts,
namely financial statements and supplemental documents.

5.4.5. Environment and resettlement management

Environmental assessment (EA) and resettlement procedures
were examined by the WB first of all. During the subproject approval
process, owners submitted the appropriate documents provided
in the guidelines, individualised their respective environment and
resettlement procedures by adding special subproject information,
and finally formulated their respective Environment Management
Plans (EMP) and Resettlement Management Plans (RAP) to ensure
that they met the Bank's OP 4.01 and OP 4.12 regulations, as well as
the relevant national regulations on environmental protection and
land requisition. Environment and resettlement management is
presented in Fig. 8. Third-party monitoring was conducted by an
external monitoring agency employed by the PMO with the support
of GEF funding.
Fig. 6. Flowchart for procurement management.

5.4.6. Dam safety management

The programme involved the construction of several dams of
WB
over 15 m in height and reservoirs with a storage capacity of more
than 1 million cubic metres. These understandably caused safety
Provincial Department concerns. A dam safety panel was formed by the provincial
Provincial PMO
of Finance government to carry out dam inspections and ensure that they
complied with the Bank's safety guidelines. Dam safety was
Country Bureau of continuously assessed during subproject construction, and again
Country PMO
Finance upon completion (see Fig. 9).

Contractor/Supplier 5.5. Implementation effect of Zhejiang small hydropower programme

Reimbursement
Yaxi Hydropower Plant Cascade I (S10 in Table 2) located in
Disbursement Application
Lishui City was chosen as an example in order to demonstrate the
Fig. 7. Financial management flowchart. implementation benefits of the programme. The plant possesses

Fig. 8. Environment and resettlement management for the Programme.

 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31
an installed capacity of 4  1600 kW, a regular reservoir capacity
of 22.30 million cubic metres, and a regulating capacity of 18.9
million cubic metres. Since its foundation in 1977, the plant had
supplied nearly 500,000 MWh green electricity to Lishui City.
However, after over thirty years of continuous operation, the aging
water–turbine generator sets and auxiliary equipment failed to
function properly. Due to the urgent need for a facility upgrade,
the plant was included in the programme in July 2005. Plant
refurbishment began in November 2006 and cost around US$2.08
million. WB financing of US$1.46 million was sought. In April 2007,
new water–turbine generator sets were installed with a capacity
amounting to 4  1800 kW and an annual energy production of
Fig. 9. Dam safety management flowchart.
Table 3
Comparison between Zhejiang Small Hydropower Programme management and the USUAL management of other WB-financed projects.
Other WB-financed projects
Project Selection Investigate with borrower, discuss
cycle lending plan and identify project
candidates; project owners play their
role.
Preparation Project owners prepare for the project
and the Bank sends its experts to providepreparation works; subproject owners
assistance.
Appraisal The Bank conducts appraisal on technical, PMO conducts appraisal and the Bank reviews;
financial, organisational, social and
environmental aspects of the project;
project owners coordinate.
Negotiation The Bank, borrower, and project owner
take part in negotiations before signing PMO signs the Agreements on behalf of the
the Loan Agreement and Project
Agreement.
Implementation The Bank dispatches consultants to
inspect and supervise project
implementation.
Post-evaluation The owner prepares project evaluation
report, and the bank completes post-
evaluation report.
29
23,000 MWh. The plant was completely renovated, increasing its
annual income by US$0.31 million. Owing to efficient programme
management, the renovated plant was commissioned six months
earlier than scheduled, and its maintenance cost was reduced by
almost 20%, which was worth US$0.42 million.
The Zhejiang Small Hydropower Programme was in progress
from June 2006 to December 2010, with a total duration of 54
months. Sixteen small hydropower plants were either renovated
or newly built, and two hydropower plants, namely S17 and S18 in
Table2, withdrawn from the programme due to dam safety issues
or owner regulation non-compliance. In accordance with the
procedures on programme change, the loan quota for S17 was
transferred to S13 to use, and the loan quota for S18 was with-
drawn by the Bank. The aggregate installed capacity of the 16
plants increased from the original 26.38 MW to the current
36.29 MW. The total cost of the programme was US$33.74 million,
of which US$17.68 million was financed by the Bank. By December
2010, the total energy produced was 431.81 GWh, and significant
social and economic benefits had been achieved.
5.6. Analysis of the advantages of programme management
The management of the Zhejiang Small Hydropower Pro-
gramme not only complied with the requirements for WB-
financed projects, but also took into full consideration the features
of small hydropower in Zhejiang, such as the large number of
subprojects and the disparate construction sites. The management
model established for the programme, with a PMO at its core, as
well as staged implementation and multi-level management at the
periphery, allowed management flexibility, a flexibility, which
was of paramount importance for the execution of the scale-up
development of small hydropower. In Table 3, the style of
programme management used in this case is compared with the
usual management of WB-financed projects at all six stages of
their execution. The management model and methods for the
programme were fully recognised by the WB and GOC.
Zhejiang Small Hydropower Programme Comments
PMO participates in the selection on behalf of Programme management reduces work of the
subproject owners. Bank and subproject owners, decreases cost of
preparation, and favours programme
implementation and strategy realisation.
PMO integrates the programme and conducts
coordinate; the Bank sends its experts to
provide assistance.
Involve national experts; lower programme
appraisal cost is covered by grants; subproject risks; save time; reduce the Bank's appraisal
owners coordinate. cost; reduce subproject owners' cost incurred
during preparation of appraisal.
The Bank, borrower, and PMO negotiate, and the Avoid precluding subproject owners from
participating in negotiations; reduce cost of
subproject owners and transfers loans to them. negotiations; make Agreement more suitable
and practical for the programme.
The Bank supports PMO development; PMO Avoid issues from insufficient WB consultant
supports subproject owners; The PMO inspects, resources; reduce the Bank's inspection costs
reviews, and supervises subproject and the owner's reception costs; better
implementation, with resulting costs covered by coordinate and control subproject and lower
grants; the Bank dispatches consultants to programme risks; build owners' capacity and
conduct unscheduled inspections. promote sustainable development.
The PMO collects data and prepares evaluation Foster the experience of summing up; reduce
report; the Bank completes post-evaluation workload of subproject owners.
report.
30 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31
6. Discussion
Although the programme management of Zhejiang Small
Hydropower proved effective, some issues still remain to be dealt
with and improvements are expected in the future.
6.1. Programme alteration
Programme alterations result in management changes due
either to unreasonable programme management constraints or
regulation non-compliance by owners or management officials.
In this case, three methods were implemented to protect against
unplanned changes. (i) In the programme assessment stage, local
governments were required to provide financial guarantees, and
each subproject owner was required to provide credentials, inter-
nal financial management rules, and financial statements, which
were all used to conduct a financial risk assessment. Only small
hydropower plant owners who met requirements were included
in the programme and provided with WB loans. (ii) In the
programme implementation plan, the WB, GOC, and PMO reached
a judicially notarised agreement concerning subproject increases
and exits. (iii) The subproject owner had to apply for these, and
when major changes occurred, such as exits from the subprojects,
procurement plan changes, and changes in the amount of the
loans, the WB and GOC gave the final approval.
It should be noted that in the usual management procedures in
WB-financed projects, the WB generally assesses the projects first
before signing the loan agreement. However, in the WB-Financed
Zhejiang Small Hydropower Programme, when the WB, GOC, and
PMO signed the Project and Loan Agreements, the 18 subprojects
were only potentially involved after the initial screening and did
not necessarily pass the full assessment carried out by the WB.
Only the management procedures, rules, and framework of the
programme were defined by the WB, GOC, and PMO in the signed
Agreements. Possible changes to the subprojects were expected in
the Agreements and corresponding procedures, making the exits
of S17 and S18 a controllable risk. These changes did not affect the
duration of the programme. Although the total installed capacity
was less than originally planned, the financial indicators of each
subproject were not affected due to the fact that each subproject
was independently accounted for. Apart from financial indicators,
the WB paid most attention to the exploration of the renewable
energy policy presented in this paper, namely a framework model
of programme management to promote scale-up development of
small hydropower. The construction of these policies was not
affected due to the withdrawal of two subprojects, and the WB
considered that the programme had achieved the desired purpose.
6.2. Financial guarantee
A loan guarantee from the GOC is a prerequisite for financial
assistance on any WB supported project; for the Zhejiang Small
Hydropower Programme, an aggregate loan was guaranteed by the
Ministry of Finance. Upon programme integration, all prospective
subproject owners were asked to submit letters of financial
guarantee from local government. Those who could not obtain a
guarantee from local government were not eligible for WB finan-
cing. Currently, approximately 60% of small hydropower plants in
Zhejiang are privately owned so that it is very difficult for the
owners of these plants to go through procedures for securing
financial guarantees from the government. More attention should
be paid to the setting of constraints, such as scope alteration and
financial guarantees at the level of programme integration, so that
the strategic objectives of the programme would be more meaningful
and easier to achieve. It might be more favourable for programme
management and more convenient for decision-making if local
government had more control and rights with regard to the use of
the WB loan.
6.3. The PMO as intermediary
A management organisation for a WB-financed project is not
a stand-alone unit. PMOs for the Zhejiang Small Hydropower
Programme at both provincial and county level were staffed by
employees transferred from other related administrative depart-
ments. As a WB-financed project cycle usually lasts more than five
years, personnel changes often occur within the cycle, a factor
which results in considerable difficulties in terms of programme
management. Core management changes occurring during the
transfer of staff members at the programme integration stage are
particularly disruptive.
The authors of this paper would like to suggest that profes-
sional intermediary agencies might be employed by the PMOs
to support the latter's programme management operations.
An intermediary agency of this sort would be responsible for
liaising with top management (e.g., the WB and the national
governmental departments concerned) and subproject owners as
well as for carrying out activities in accordance with the set
strategic policies and constraints. The lead management for the
programme would take responsibility for setting these policies
and ensuring that the constraints are respected. With the support of
a professional intermediary agency, a PMO would contribute to
formulating a highly efficient and multi-level programme manage-
ment organisation and system and accumulate programme manage-
ment knowledge.
6.4. Programme information management
Compared with traditional project management, programme
management requires managers to deal with more complex
information since they need to coordinate and supervise a variety
of subprojects located in different places at different stages of the
programme. A programme management information system
should have been established to improve the management effi-
ciency for the Zhejiang Small Hydropower programme right at the
outset, after identifying its features and clarifying the manage-
ment process.
7. Conclusions and prospects
During the past thirty years, China has become the second
largest country in terms of energy consumption, and energy
demand continues to rise. In order to address energy shortages
and reduce greenhouse gas emissions, the Chinese government is
instituting energy policy reforms and plans to raise the proportion
of renewable energies. As small hydropower is an important
source of renewable energy with a huge potential for develop-
ment, promoting the scale-up development of small hydropower
is important for China and its cooperation with international
organisations such as the WB and the GEF is mandatory. During
the utilisation of WB financing, attention should be paid to the
significant differences between the management of WB-financed
projects and domestic hydropower project management.
In contrast to individual project management, small hydro-
power programme management is oriented toward the overall
strategic goals of multiple subprojects and focuses on integral
planning, control and the maximisation of the rate of resource
exploitation. In this paper, the Zhejiang Small Hydropower Pro-
gramme, which was part of Phase I of CRESP, has been discussed,
firstly by examining the constraints related to programme manage-
ment. The programme's key control points were then examined, and
 X. Chen et al. / Renewable and Sustainable Energy Reviews 24 (2013) 21–31
an appropriate model of programme management established; this
ensured the successful implementation of the programme and the
achievement of its desired strategic objectives.
The model of programme management discussed here consists
of programme management organisation, programme integration,
appraisal, procurement, financial management, environment and
resettlement management, and dam safety management, among
other factors. The authors of this paper have referred to these
factors as a “framework model of programme management with
a PMO at its core” because the PMO is required to carry out
management activities and because all the key parts relating to the
management process were designed to serve as a framework. The
model and its methods of staged implementation and multi-level
management are of paramount importance for programmes sup-
ported by the WB.
Currently, there are an increasing number of programmes being
implemented in China, such as the small hydropower plant
renovation projects, reservoir reinforcement projects, drinking
water projects for rural areas and water saving projects for large
irrigation districts. The model of programme management dis-
cussed in the paper could be improved and adapted to the
management of batches of subprojects in order to realise strategic
benefits for these projects.
Acknowledgements
X.C. was partly supported by the World Bank (WB) and the
Global Environment Facility (GEF). Z.W. was supported by the
National Nature Science Foundation of China (Nos. 51079127,
51179171, and 51279180) and the National Basic Research Pro-
gramme of China (2013CB035901).
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